Mukilteo Multimodal Ferry Terminal Application for the 2013 TIGER Discretionary Grants Program Submitted to: U.S. Department of Transportation TIGER Discretionary Grants Program Submitted by: Washington State Department of Transportation 310 Maple Park Avenue SE PO Box 47300 Olympia, WA 98504-7300 May 2013 TABLE OF CONTENTS Executive Summary………………………………………………………………………………….….1 I. Project Description………………………………………………………………………………..…..2 II. Project Parties…………………………………………………………………………………….….6 III. Grant Funds and Sources/Uses of Project Funds…………………………………………………...7 IV. Selection Criteria………………………………………………………………………………...…..8 A. Long-Term Outcomes…………………………………………………………………….....…..8 i. State of Good Repair……………………………………………………………………8 ii. Economic Competitiveness………………………………………………………...…..10 iii. Livability………………………………………………………………………….……14 iv. Environmental Sustainability……………………………………………………..….…16 v. Safety………………………………………………………………………………..…17 vi. Project Readiness………………………………………………………………….…...19 B. Innovation……………………………………………………………………………………..24 C. Partnership………………………………………………………………………………….…25 D. Results of Benefit-Cost Analysis……………………………………………………………......27 V. Other Environmental Reviews and Approvals…………………………………………………...…29 VI. Federal Wage Rate Certification…………………………………………………………….............29 APPENDICES Appendix A: Signed Final Environmental Impact Statement Appendix B: Washington State Ferries System Map Appendix C: Letters of Support Appendix D-1: Benefit-Cost Analysis Summary Appendix D-2: Benefit-Cost Analysis Details Appendix E: Diagram of Ferry Terminal Components Appendix F: Federal Wage Rate Certification EXECUTIVE SUMMARY The Washington State Department of Transportation Ferries Division seeks $32.7 million of TIGER funding, with $86.6 million of State funds and an overall 61% project match, to replace the ferry terminal in Mukilteo, Washington, 25 miles north of Seattle. The Mukilteo Multimodal Ferry Terminal (MMFT) project replaces the aging, seismically deficient terminal and relocates it to a nearby vacant brownfield. The new terminal increases efficiency and capacity, featuring separated and safer loading for pedestrians, priority loading for bicycles and High Occupancy Vehicles (HOVs), a six-bay bus transit center, and improved connections to the adjacent commuter rail station. The project will also remove a massive, dilapidated pier that is degrading water quality in Puget Sound. The MMFT implements the shared community vision of the City of Mukilteo and dozens of partner organizations. The total project cost is $140.9 million. To date, $108.2 million has been secured, consisting of $21.6 million of federal funds and $86.6 million of state funds. WSF seeks to fill the remaining $32.7 million gap with TIGER funding which can be obligated by May 5, 2014. The project will yield a wide array of benefits, including the following: . State of Good Repair: Replaces a 60-year-old, seismically deficient terminal built on eroded timber piles with a substantially more efficient facility that meets modern seismic codes. Relocates terminal to a new site, allowing for continued operation of the existing terminal during construction. Economic Competitiveness: Strengthens transportation in growing Seattle region by replacing a ferry terminal serving 3.8 million riders – 58% of whom are commuters – and handling over four million tons of freight per year. Increases efficiency and capacity by loading pedestrians and vehicles simultaneously. Improves turn-around time by 41%, reducing delays for freight and reducing costs to employers and employees through more efficient transit. Livability: Restores community access to waterfront, providing shoreline access via a waterfront promenade. Expands affordable, healthy transportation options including bicycling and walking. Improves connections to public transit, and improves accessibility for people with limited mobility. Provides new open spaces and improves connections to beaches, parks, and trails. Environmental Sustainability: Improves multimodal options including bus, rail, walking, and biking, inducing mode shifts expected to save over 8,000 metric tons of CO2 annually by 2030. Removes massive pier including 3,900 piles and 7,000 tons of toxic debris from Puget Sound. Safety: Greatly reduces seismic risk. Increases safety by separating terminal from public streets, enabling controlled access. Separates pedestrian and vehicle traffic for safer loading. Project Readiness: The Final Environmental Impact Statement was signed in May 2013, and a Record of Decision is expected by August 2013. The project will be advertised May 5, 2014, construction will run from 2014 to 2017, and the new terminal will open in July 2017. Innovation: Designs new terminal to LEED Silver standards. Utilizes regional ORCA smartcard as fare payment. Employs innovative methods to protect marine mammals and an endangered seabird. Partnership: The project is backed by a vibrant partnership of private employers, Federally Recognized Indian Tribes and Nations, transit agencies, environmental organizations, and all levels of government. MMFT benefits commuters to Boeing, Microsoft, shipyards, and aerospace businesses, and capitalizes on two decades of planning and tremendous support across the greater Seattle region. ________________________________________________________________________________________ Mukilteo Multimodal Ferry Terminal | WSDOT 1 of 29 I. PROJECT DESCRIPTION The Washington State Department of Transportation Ferries Division (also known as Washington State Ferries, or WSF) seeks TIGER funding to replace the ferry terminal in Mukilteo, Washington, 25 miles north of Seattle. The Mukilteo Multimodal Ferry Terminal (MMFT) project replaces the aging and seismically deficient terminal and relocates the new facility east of the downtown area to a vacant brownfield. The new terminal features dedicated lanes and priority loading for bicycles and HOVs, a six- bay bus transit center, and improved connections to the adjacent commuter rail station. Overhead loading – a pedestrian sky bridge connecting the terminal building to the upper passenger deck of the ferry vessel – will enable simultaneous loading of pedestrians and vehicles. As part of the project, WSF will remove a massive, dilapidated pier that is degrading water quality in Puget Sound. The Mukilteo-Clinton ferry route connects Whidbey Island to the greater Seattle area, a region of 3.7 million people with a job base of 1.7 million. The region’s strong industrial base includes hundreds of aerospace businesses and shipyards. The four- county region has experienced rapid population growth, increasing 34% from 1990 to 2010. Residents and employers rely on this critical ferry route to move people and goods across Puget Sound, and to link Whidbey Island residents with vital public services. Figure 1: Mukilteo lies 25 miles north of Seattle Mukilteo-Clinton is a vital route with growing ridership Mukilteo-Clinton is WSF’s busiest route for vehicle traffic and has the second highest annual ridership. As part of State Route (SR) 525, the ferry route is an NHS route and key freight corridor. In 2012, the route carried: . 3.8 million people; . 2.1 million vehicles; and . over 4 million metric tons of freight. Ridership is estimated to grow to 5.9 million by 2030, fueled by employment growth on Whidbey Island and the mainland. Commuters account for 58% of Mukilteo-Clinton ridership. Of these commuters, 19% are employed in the manufacturing sector - the highest among all routes and double the system-wide average. The area is home to Boeing, which has a 1,025-acre aircraft manufacturing plant just three miles from the Mukilteo terminal. In addition to Boeing, rider destinations include downtown Seattle, downtown Everett, the University of Washington, and Naval Air Station Whidbey Island. Figure 2: Mukilteo-Clinton route connects Whidbey Island to the Seattle region HOVs commuting through the Mukilteo terminal include 46 registered vanpools and 19 registered carpools which each day transport over 250 employees of Boeing, Microsoft, and multiple shipyards and aerospace businesses. ________________________________________________________________________________________ Mukilteo Multimodal Ferry Terminal | WSDOT 2 of 29 Sailing time between Mukilteo and Clinton is approximately 15 minutes. Without ferry service, the drive from Clinton to Mukilteo is over 100 miles and two hours. The ferry route bypasses several congested corridors and chokepoints, including the Interstate-5 (I-5) north-south corridor. Figure 3: Driving takes over two hours Figure 4: The ferry crossing takes 15 minutes Existing ferry terminal is inadequate, seismically deficient, and in need of replacement The Mukilteo ferry terminal was built in 1952, is seismically vulnerable, and is in urgent need of replacement. Since the terminal was built, the region’s population has grown substantially and the terminal is inadequate for both current and future needs. Cars and pedestrians are forced to share the transfer span (the lift bridge connecting the ferry to the pier) for loading and unloading; these operations must be sequenced and significantly increase turn-around time. Furthermore, overhead loading is infeasible within the existing location and facility footprint. Vehicles drive onto the ferry via a public street that bisects the Mukilteo downtown, leading to conflicts between vehicles and pedestrians. In peak periods, the vehicle queue extends one half mile outside of the terminal onto SR 525,